order of enforcement

[deecee]

All wrong.

The TO gets called first. The swinging of the elbows with no contact is a violation if the ball is live. since its a dead ball no call or in your case maybe a T for unsporting behavior.

if it were contact and the ball is live its either a PC, Intentional foul or flagrant. In my neck of the woods the emphasis is intentional or flagrant. Since the ball is dead its either a a simple ol technical or its a flagrant T, or the lack of contact is ignored.

in your case, no contact so dead ball nothing, but you say the elbow was thrown with intent, so you have an unsporting T at the minimum. But in all reason ability you have nothing except a quick chat with the player to watch his elbows as justifying intent in this scenario is tough. But a T could be warranted and backed, just tough in most cases.

The way you described is the correct sequence. You cannot negate a legally granted TO.